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HomeMy WebLinkAboutMinutes - 20031111APPROVED 02!1912004 MINUTES ORANGE COUNTY BOARD OF COMMISSIONERS WORK SESSION November 11, 2003 7:30 p.m. The Orange County Board of Commissioners met for a Work Session on Tuesday, November 11, 2003 at 7:30 p.m. at the Southern Human Services Center in Chapel Hill, North Carolina. COUNTY COMMISSIONERS PRESENT: Chair Margaret W. Brown, Moses Carey, Jr., Alice Gordon, Stephen Halkiotis and Barry Jacobs COUNTY COMMISSIONERS ABSENT: COUNTY ATTORNEYS PRESENT: Geoffrey Gledhill COUNTY STAFF PRESENT: County Manager John M. Link, Jr., and Assistant Managers Rod Visser and Clerk to the Board Donna S. Baker (All other staff members will be identified appropriately below) NOTE: ALL DOCUMENTS REFERRED TO IN THESE MINUTES ARE IN THE PERMANENT AGENDA FILE IN THE CLERK'S OFFICE. 1. Potential Impacts Resulting from a Possible Merger of the Orange County Schools and Chapel Hill-Carrboro City Schools Chair Brown said that the Board of County Commissioners normally does not videotape work sessions, but the Board thought it was appropriate given the subject matter. She also told the audience that there is no public comment at work sessions. The next public hearing on the subject of merger is December 4t". She said that this was the first opportunity that the Board has had to discuss the issue of merger since the information was received and the public hearings were held. Chair Brown asked for a moment of silence in honor of Veteran's Day. Chair Brown reviewed the handouts at each Commissioner's place and said that the yellow sheet is information on an upcoming Strategic Housing Session on November 20t" at the Southern Human Services Center. There were also copies of verbatim minutes from the October 16t" and 23rd public hearings. John Link said that the staff has given the Commissioners a second version of attachments that are in their packets with the additions of attachments 27 and 28. Rod Visser said that attachment 27 is information received from the Orange County Schools in response to a question brought up at the County Commissioners' meeting about non-classroom administrative personnel. It also includes information about network computers. Attachment 28 was in response to another request from the County Commissioners regarding dropout rates, number of students who took the SAT, etc. This is a side-by-side comparison of the two districts. Chair Brown said that there were 4 proposals tonight-Chair Brown, Commissioner Carey, Commissioner Jacobs, and Commissioner Gordon. Commissioner Gordon said that her proposal is to make progress toward funding equity. She wanted to take into account what she heard at the public hearings and from the Orange County Schools, which would receive additional funding from her proposal. She proposes three steps toward funding equity as follows: STEPS TOWARD FUNDING EQUITY The commissioners should take the following steps to achieve funding equity between the two school districts. (The date to take the step is given in parentheses.) I. Decide to call an election to determine whether voters wish to implement a countywide supplemental tax (ad valorem taxi for education. Instruct staff to bring back a report in January 2004 concerning the recommended process for this vote. The process should include the elements listed below. (NavembertDecember 2003} A. After receiving the staff report, the commissioners will decide the maximum rate at which the tax can be levied. B. The vote on the tax will take place during the 2004 primary election {usually held on the first Tuesday in May). C. The proceeds of the tax will be used to "operate schools of a higher standard." D. Upon a favorable vote in May, the tax will take effect on July 1, 2004*. II. If the countywide supplemental tax is approved by the voters, the commissioners will include the following items in the county budget for FY 2004-2005.* (May/June 2004} A. Set the countywide supplemental tax rate as appropriate to address demonstrated unmet needs far the schools. It is recommended that the rate be set at 4 cents per $100 of valuation. This will increase funding to the Orange County Schools by approximately $1.5 million, which is about one-half of the amount that was not funded in the FY 2003-2004 budget. B. Adjust the city district tax rate downward to compensate for the increase in the countywide tax rate. This adjustment will be made so that the Chapel Hill- Carrboro Schools will not only be "held harmless" in the narrow sense, but also so that the total funding to the district will increase as appropriate to address demonstrated unmet needs. III. The commissioners will formulate funding guidelines and priorities for the countywide supplemental tax. For example, the tax could be used for funding equity, to promote collaboration, and for other purposes to allow the schools to operate at a higher standard. The commissioners will also define equity and identify their intentions concerning the total tax increase that will be necessary to achieve fundina eauity between the two school districts and the time period for that increase. (Spring 2004) STEPS TOWARD COLLABORATION I. The two schools districts, in partnership with the commissioners, will aaree to work with a facilitator to identify concrete steps for collaboration. They will agree on the funding, the facilitator, and other aspects of the collaboration study. (By February 2004} II. The collaboration study will produce an interim report by May 2004, in time to initiate some meaninoful collaboration during the 2004-2005 school year if at all possible. The final report will recommend significant collaboration that will take place during the 2005-2006 school year and beyond. Proposed by Alice Gordon for the November 11, 2003 Baard of County Commissioners Work Session, *If action cannot be taken by this date, the tax will be implemented as soon as legally possible. Commissioner Carey said that the most significant element of his proposal is to design a process so that this Board and the citizens of Orange County are not back debating the issue of equitable funding 10-20 years from now. It is also designed to help put this Board and the County in a position to achieve some savings on capital projects such as school construction. He recognizes that the school system advocates are great advocates for the interests of children in schools and that is what they are designed to do. However, the Board of County Commissioners must be advocates for everyone, including those households that do not have children in schools. PROPOSAL FOR INSURING THAT EVERY SCHOOL AGE CHILD IN ORANGE COUNTY HAS AN EQUAL OPPORTUNITY TO REACH HISIHER FULL EDUCATIONAL POTENTIAL February 12, 2004 meeting: Consider and act an a decision of whether the school systems should be merged II. If the Baard decides to merge the school systems, we should decide an February 12, 2004 to set the Effective Date of Merger for July 1, 2006 or July 1, 2008 III. If the Board decides to merge the school systems, we should decide on February 12, 2004 to appoint a Citizens Merger Advisory Task Force to work for not more than twelve months {12) after appointment to develop and recommend a Proposed Merger Plan to the BOCC for approval. The BOCC approved plan would be submitted to the State Department of Education in not mare than five months (5) after submission to the BOCC by the Citizens Task Force. The board should also decide at this meeting to employ a consultant to work with county staff and the Task Force to develop a plan that is consistent with state board of education policies. The task farce members and the consultant will be appointed within 90 days of the February 12, 2004 meeting. IV. Decide at the February 12, 2004 meeting that one part of the Proposed Merger Plan will include a provision that no student in either system will be involuntarily transferred from the school helshe attends on the effective date of merger within the first three years after the effective date of merger except far those transfers necessary for occupancy of the new high school in southern Orange County and the new middle school in central Orange County. V. Decide at the February 12, 2004 meeting that the BOCC will begin with the 2004105 Orange County budget to phase out the city school district tax over a three (3] year or five [5) year period {period to correspond with the date selected far the Effective Date of Merger) and increase the general properly tax proportionately to fund schools. VI. Decide at the February 12, 2004 meeting to ask each school board whether they would participate in the development of a proposed merger plan if asked to do so. Commissioner Jacobs said that his proposal is a collaborative effort and he and Chair Brown had worked on this together. He wanted to acknowledge the thoughtful, heartfelt, and insightful comments from the public. He thinks it is clear that the Board listened and was affected by all comments and ideas. He said that one major difference in his proposal from Commissioner Corey's proposal is that he still believes that we are in the process of articulating the problem that needs to be solved and analyzing the alternatives to solve the problems. It is also clear that same actions are called for in the short term. His proposal has three parts. A PROPOSAL TO IMPROVE EDUCATIONAL OPPORTUNITY IN ORANGE COUNTY TASK FORCE: Create a Commissioners' Educational Excellence task force to provide a thorough, unbiased review of the Orange County and Chapel Hill-Carrboro City school districts. Analyze the resources and programs available; address concerns regarding funding disparities, cooperation, and other matters identified by the Board of County Commissioners; and determine to what extent changes are necessary to assure that each student in Orange County has an equal opportunity to achieve a quality education. Charge the group with returning a report to the Board of County Commissioners by the end of the 2003-2004 fiscal year, if possible. ACTION BY THE BOARD OF COUNTY COMMISSIONERS: --Hire a consultant to report to the BOCC who would examine the operations of each school system from an efficiency and business standpoint, with the object of improving education, reducing costs, and identifying areas of potential collaboration such as purchasing. -- Consider for adoption as part of the 10-year Capital Investment Plan a resolution stipulating that capital funds will be allocated to build a single proposed central office shared by both school systems. --Have county staff analyze for possible adoption by voters a countywide supplemental school tax that would be dedicated to school needs, scaled to reduce the CHCCS district tax as appropriate, and that would serve to unify support for education in Orange County. COLLABORATION: Charge the Chapel Hill Carrboro City and Orange County school boards to return to the Board of County Commissioners by June 1, 2004 with an analysis and plan of action to implement collaboration in the following areas: --A joint effort to coordinate the implementation of a middle college program, preferably in concert with Durham Technical College. --A single alternative school program for students in both districts. --A plan to allow students in each district to readily access courses and programs not available in their district but offered in the county's other school system. -- A plan to institute regular meetings between the superintendents and their respective staffs to examine areas of mutual educational interest and potential cooperation, including an annual report to the public on their progress at working together. --A joint early-childhood program. --An effort to expose parents in the CHCCS system to the features of the OCS year-round schools at Hillsborough Elementary and Stanback Middle School. --A strategy for promoting contacts between children in the respective school systems on an ongoing basis beyond athletics {pen pals, joint projects, etc.). Commissioner Jacobs said that part of this process has been educational and this proposal is to make some tangible, immediate steps and to do things that are within the Board's and the two school boards' control. Chair Brown said that her concern is education far our children and that this County is committed to making both systems great. She found the public hearings to be exceptional. She said that the County Commissioners have deliberated on this proposal very prudently and slowly and were considering how it will affect the education that is provided in both school systems. The County Commissioners know that these school programs that all people in Orange County pay for are not accessed by all of the children of Orange County; and what may be available in one system, may not be available in another. She wants to focus on understanding what our school systems have and how all children in the County can use these programs. Her proposal is as follows. Proposal far consideration by the Orange County Board of Commissioners: This proposal investigates the equal access of all Orange Co. children to all available educational opportunities. The Commissioners should establish an Educational Excellence Task Force by the end of this year 2003. The Commissioners will ask former UNC systems' President William Friday, if he will chair the Task Force and ask Madeleine Grumet, former Dean of the UNC School of Education and currently UNC Professor of Education, to assist President Friday in the formation of this Task Force. Mission The Task Farce's mission would be to provide a review of both Orange County school systems (Orange County and Chapel Hill/Carrboro). It would investigate the educational resources available in both school systems, make recommendations for improvement and how these resources could become equally accessible to all Orange County students. The aim would be to preserve and enhance the superior quality of education that we now have. 1.. Investigate the educational resources available to students and teachers in both school systems. 2.. Determine how these resources can be made equally accessible to all students and teachers in Orange County. 3.. Preserve the sustainable, cost effective spending of public tax monies that our citizens provide for schools in Orange County. The analysislreview may include: 1. Assessing the status of educational opportunities provided to all students in both school systems. Evaluating the resources in both systems. Assessing the strengths and weakness of both systems. Investigating the educational needs of both systems. 5. Analyzing what each system currently does not offer its students and teachers and how this can be improved. Conclusions and recommendations of the Task Force should include {but not limited to}: How each system could collaborate and share resources. 2. What educational resources could and should be shared to achieve equal opportunities for all children in both systems. 3. Recommendations for increasing the accomplishments of under- achieving students, enriching programming for all students and preserving and sharing curriculum for academically advanced students. 4. Most importantly, the Task Force should recommend practical working models that bath school systems could adopt to ensure collaboration and to achieve the goal of providing equal accessibility far all children to all the educational resources that Orange County provides The Commissioners would ask that both school systems would commit themselves to support the Task Force mission through cooperative and practical means. The Commissioners would commit to the maximum of $1 a,aaa, funds that may be needed by the Task Force for its research efforts. Chair Brown said that none of the County Commissioners have had an opportunity to look at all of these proposals. Commissioner Carey said that all of these proposals are designed to achieve some similar objectives. He made reference to a Countywide district tax and asked if it assumed that all school funding would come from the Countywide district tax or if some would come from the general property tax. Commissioner Gordon said that the Countywide supplemental tax was one of three methods listed in the September 15th staff report of haw to address funding inequity without merger. The supplemental tax would be a special separate tax. She does not envision it replacing the other. This would be a separate tax for which the Board would define the purposes. Commissioner Jacobs said that he thinks the Countywide supplemental tax is supplemental. He thinks it is fair to say that because the voters in a district have endorsed a tax it is easier in budget time, instead of raising property taxes far everyone, then the district tax is raised for those who have previously endorsed the concept. The advantage of having a Countywide supplemental school tax would be to get the voters to speak on whether or not they wanted to make that additional commitment. He said that they have not defined what equity is here. He hopes that this would come out of a study by professionals who can judge this with an unbiased view. Commissioner Carey asked about the State requirement of providing equal per-pupil allocations. Jahn Link said that whether it is a general Ad Valorem tax or a supplemental tax, if you are applying it to both systems, it has to be on a per-pupil basis. Geof Gledhill said that a Countywide supplemental tax would have to be appropriated on a per- pupil basis the same as a general fund appropriation. The only way to do it different would be if there were a special district tax for each school district. Commissioner Jacobs said that, to be clear, that if the Countywide tax went up, the CHCCS district tax would go down proportionately. Commissioner Gordon said that she understood that the Countywide supplemental tax would have to be on a per-pupil basis. She emphasized that she would not necessarily recommend that when the Countywide tax went up that the CHCCS tax may go down completely. She would recommend that each time that each of the needs be addressed. She is trying to give the OCS the money that they asked for but still give CHCCS their historical increases each year. She said that Orange County is good at funding their school systems. She wants the OCS to get more money and far the CHCCS to still get their needs met. Commissioner Halkiotis said that in these four proposals that Commissioner Jacobs, Commissioner Gordon, and Chair Brown do not mention merger and Commissioner Corey's proposal has merger all in it. He said that Commissioner Carey has made some suggestions for deadlines and he is specific. He said that there is commonality in the other three. He made reference to the Countywide supplemental tax and said that he understood that it would increase and the district tax would decrease over time to zero. He read an article on the history of the district tax. He asked if this was a segregated school system at the time the tax was put into place. He assumed that it was. He said that they should work an issues that they have common ground on, and the first is the creation of the task force. Ta have someone like Bill Friday to chair that group attaches a certain amount of prestige, respect, and integrity to the process to help diffuse a volatile issue. He said that he does not appreciate the vile threats that some County Commissioners have received when their goal has been to make sure that each child in Orange County has an equal opportunity for education. He likes the idea of setting up this task force with Bill Friday and Madeleine Grumet. This task force should not become another group that will have some severe political bend to it. Chair Brown said that the University has been trying to use their assets in helping communities and this task farce would be objective. She thinks the task farce is a good way to develop the information base that everyone has asked for without involving a lot of potentially conflicting ideas and feelings. Commissioner Carey said that the Board should not make any decisions until after all of the public hearings. This is why he suggested February. He thinks that his proposal would help them focus on something positive for the future of this County. A decision is going to have to be made on these issues at some time; whether it will be them or some other Commissioners. He said that the Countywide tax proposals would go a long way to address issues and would make merger a moot point, but he was trying to address some issues in funding that are broader than just equity in funding for the schools. He thinks that as long as there are two school systems, there will always be competition for the capital dollar that is going to mean inefficient use of school facilities. This is his personal opinion. He said that the Board of County Commissioners will have to take some action on the recommendations of the task force. The task force will not make the tough decisions. Commissioner Jacobs said that he would propose that the staff put together a recommendation for the December 9th meeting, which would be after the public hearing. He thinks that the public has felt a certain anxiety aver a decision being made before they have had an opportunity to speak or get sufficient information. It would be a courtesy to the public to let them make comments before the Board takes any kind of action. The Board could also invite the two school boards to come to the meeting to hear the Board's conversation and to field questions before making a decision. He said that there is almost nothing mentioned in his proposal that has not already been discussed. It is not a question of springing something new on people. He thinks that it is important to take some actions that will have some immediate affect. Commissioner Gordon said that she thinks that it is important to digest the information, let the public comment, and then try to make a decision. She does not want to lose sight of the need to do something in the short term. She believes that we need to do something in the next budget cycle for the OCS. She emphasized that merger would mean five times the tax rate that she recommended for the first year of the Countywide supplemental tax. She wants to do something by July 1, 2004 because even though people were either for or against merger, they all want to do something far the children of the OCS. It is a large tax increase for the Orange County School district that she is proposing, but the step has to be taken to reach the needed funding. She is pushing for the County Commissioners to take a strong step by putting a supplemental tax to a vote. This would not hurt the CHCCS. She wants to do something concrete by July 1, 2004. Commissioner Halkiotis said that all of the County Commissioners want to do something concrete. He said that he does not want to engage in any more discussions or debates about meaningless subjects. He made reference to the issue of collaboration when it was brought up by Commissioner Jacobs a couple of years ago and a former school board member said that it was merger. Now that merger has been suggested, we can use the word collaboration without having a sinister plan. He thinks that we need to get beyond this and decide to do something. He said that he has heard that people do not want merger and he heard a smaller group of people that wants merger. He said that they need to look at how the school systems are spending the money they are given right now. He said that he is supportive of a Countywide supplemental tax, but he is not supportive of giving money out until the two school systems are analyzed for efficiencies. He would like to see a reward system for people that find ways to save money for the system. He cautioned that nobody knows what the State is going to da, and the proposed 4 cents could just get eaten up by the State. Commissioner Halkiotis said that he thinks Commissioner Jacobs has some validity in asking for a single central office as part of a ten-year CIP plan. He would take it a step further and ask far an alternative school. The central office, the alternative school, and the pre-K facility could be on the same campus. He made reference to the field trip to Greensboro to look at a middle college. He said that he was disappointed that the Durham Tech people were not enthusiastic about this facility. He said that a single alternative school is a no-brainer. Chair Brown said that the point of the goal that was brought up a year ago is so significant because it really brought action right then. She said that what Commissioner Carey brought forward is to really da an analysis of the school systems. She thinks this is the time to da an analysis. She thinks everyone agrees to doing this. Chair Brown made reference to the supplemental tax and she asked what happens if this vote does not pass. She thinks there needs to be a back up option. She would not like to put all of their hopes on a vote. She would also like to do an analysis of how the Countywide supplement could be used. She asked Geof Gledhill to clarify the per-pupil allocation. Geof Gledhill said that the boards of education would decide where to spend the supplemental tax money. Commissioner Carey asked if the Board of County Commissioners could decide to put forth a public vote on the tax or if they would need concurrence from the school boards. Geof Gledhill said that the Board of County Commissioners is empowered to call the election. Commissioner Gordon said that the reason that she wanted to do something concrete is that she has been persuaded by the public that the $1.5 million would be needed by the OCS. She felt that one of the reasons why people wanted merger was because they wanted substantial funding far the OCS. She was trying to figure out haw to get mare funding for the OCS. Commissioner Gordon said that the major reason to have a central office is for a merged system. She would rather say that no more capital funds would be used for additional administrative office space. She proposes that we gather information and then have a public hearing and go from there. Commissioner Jacobs asked about the Countywide supplemental tax and if it could be used for capital projects and Geaf Gledhill said that the ballot could be structured this way. Commissioner Jacobs made reference to Armistice Day and the fact that the word "collaboration" signifies something bad. He said that it may be a subliminal message. Maybe the ward "cooperation" should be used instead. He said that he and Chair Brown talked about encouraging the Board to articulate what issues the task force should address. One issue would be whether smaller school systems promote the kind of parental involvement that the public is saying is so essential to student achievement. Also, because some communities are re-segregating because of how housing is built, we may be creating new inequities within our systems. Another issue is the possibility of socioeconomic inequities. He would like to hear more about how to address this. Also, the whole issue of spending - is it de facto that if you spend more money there will be better education? He would like some guidance from professionals about targeted spending. Commissioner Carey said that he thinks that this proposed task force will be significant and he cannot argue with asking a group to look at this. But if we go that route then we need to ask the task farce to include the social justice issue in how we do business with the schools. He said that the civil rights issue is important to him and he apologizes to the public if they thought he implied "racism" with the civil rights issue because that is not what he meant. Civil rights issues ga way beyond race. He would like the group to look at this. Commissioner Jacobs said that this Board has looked at social justice issues and they are viewed with a jaundiced eye by the rest of North Carolina. Orange County has taken leadership in areas where others in the State are hesitant to even tread. He agreed to add the social justice issue. He wants to be careful how things are labeled. Commissioner Halkiotis said that it is important to remember that the children an free ar reduced lunches are on these because there are a lot of poor working parents in the County. He thinks the County's track record is clear on social justice and the County has done a lot to try and lower the incidence of poverty. There is still a lot of work to do. He said that unfortunately, money does become important, especially if you are hungry. A hungry child does not learn very well. Chair Brown made reference to Commissioner Corey's proposal of February 12t" as a date for a vote an merger. She said that this could be put as an agenda item for a vote. Commissioner Carey said that he only picked this date because he knew there was a work session scheduled. Chair Brown suggested that the staff get more information on proposals for a supplemental tax and delineate what is legal and haw Commissioner Cordon's proposal would work. She does not understand how the per-pupil amounts would be allocated. John Link suggested that as they consider the possibility of an educational excellence task force, that one of the elements they could focus on is how a supplemental tax could add to the sustainability and stability of funds for education. Chair Brown said to please lay it out clearly and how these measures would work in the short term. John Link asked if the Board wanted this information for the December 9t" meeting ar by a later date. The Board agreed to have as much information as possible for review by December Stn Chair Brown reminded everyone that the next public hearing is on December 4tn A motion was made by Commissioner Carey, seconded by Commissioner Halkiotis to adjourn the meeting at 9:20 p.m. VOTE: UNANIMOUS Margaret W. Brown, Chair Donna S. Baker Clerk to the Board